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Immigration Policy and Immigrant Heath

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Immigration Policy and Immigrant Heath

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    1. Immigration Policy and Immigrant Heath The impact of Immigration Policies on the health and well-being of immigrants over the years Robert Vineberg January 2010

    2. Contents Quarantine Passenger Protection Strengthening Quarantine Prohibited Categories Today’s Immigration Health Program Delivering the Immigration Health Program 2

    3. Protect the emigrant; Protect yourself 3

    4. Quarantine - 1 “Quarantine” from the French “a period of forty days” 1348 First measures applied in Venice to attempt to contain the “Black Death” 1403 Venice opened the first lazaretto (quarantine facility) on an offshore island. 1720 First use of quarantine in Canada was during the great plague epidemic in Marseille when Governor Vaudreuil ordered vessels to be examined at Isle aux Coudres. 4

    5. Quarantine - 2 In 1761, Nova Scotia passed its first act regarding Distempers, to prevent the spreading thereof In1795, Lower Canada passed a Quarantine Act, requiring “ships and vessels coming from places infected with the plague or any pestilential fever or disease, to perform Quarantine, and prevent the communication thereof. 5

    6. Passenger Protection - 1 The bulk of immigrants in the early 1800s were Scots a Committee of the British House of Commons was struck to look into issues affecting Scotland, including emigration. It observed, “That Persons emigrating from different Parts of the United Kingdom, have in various Instances, suffered great Distress and Hardship, on account of the crowded State of the Vessels, the want of a sufficient stock of Provisions, Water, and other Necessaries for the Voyage, and in various other Respects.” 6

    7. Passenger Protection - 2 The committee recommended: That, it is expedient to regulate Vessels carrying Passengers from the United Kingdom to His Majesty’s Plantations and Settlements abroad, or to Foreign Parts, with respect to the Number of Passengers which they shall be allowed to take on board, in proportion to the Tonnage of such Vessels, as well as with respect to the Provision of proper Necessaries for the Voyage. 7

    8. Passenger Protection - 3 First Passenger Act was passed, by the Imperial Parliament, in 1803. Healthy immigrants were more likely to survive and succeed but, more importantly, healthy immigrants were not going to infect the British North American population with disease But the British act did nothing to help emigrants once they arrived in Canada, often penniless after ships’ masters charged exorbitant prices for food and water on board so immigrants still often arrived unhealthy In 1823, Lower Canada established an Emigrant Hospital at Québec City 8

    9. Passenger Protection - 4 British North American Legislation In 1832, Nova Scotia passed its own Act relating to Passengers from Great-Britain and Ireland, arriving in this Province Imposed 5 shilling land fee or head tax to be applied “to such uses and purposes, for the benefit of poor Emigrants arriving in this Province…” Within weeks similar legislation passed in Lower Canada and New Brunswick Fees helped fund Emigrant Aid Societies 9

    10. Strengthening Quarantine - 1 1831 Cholera epidemic in England quickly carried to Canada All provinces tried to reinforce quarantine: Facilities at Grosse Ile made permanent New Brunswick opens station on Partridge Island in 1830 Nova Scotia continues to use shipboard quarantine until 1866 cholera epidemic leads to purchase of Lawlor’s Island 10

    11. Strengthening Quarantine - 2 1848 Act to make better provision with respect to Emigrants … Province of Canada authorizes Medical Superintendent of Quarantine at Grosse Ile to examine all immigrants on arrival. 1849 Emigrants Act Ship’s Master to put up £75 bond for any passenger found to be “Lunatic, Idiotic, Deaf and Dumb, Blind or Infirm.” Except if family could support or Medical Superintendent thought not likely to become a public charge (repeated in 1852, 1866 and 1869 acts) 1852 - Province of Canada passed legislation to “consolidate the laws respecting Emigrants and Quarantine” Start of the concept of an immigration health policy 11

    12. Strengthening Quarantine - 3 1858 – Emigrants and Quarantine Act amended to allow ship’s masters to recover bond if the lunatic, idiotic, deaf and dumb, blind or infirm person were returned to port of departure Confederation Dominion Government takes over quarantine stations (confirmed in 1869 Immigration Act) Immigration and Quarantine with Dep’t of Agriculture 1873-1882 seven other quarantine stations established 1892 – Immigration to Dep’t of Interior 1903 - Quarantine and Immigration Health responsibilities transferred to Dep’t of Interior 12

    13. Partridge Island Quarantine Station Saint John Harbour 13

    14. Layout of a Quarantine Station 14

    15. Second Class Hotel Grosse Ile 15

    16. Second Class Hotel Grosse Ile - 2007 16

    17. Prohibited Categories - 1 1885 Chinese Immigration Act social Darwinism/eugenics and fear of “Yellow Peril” in BC 1902 Amendments to the Immigration Act Proclamation (Order-in-Council PC1902-1293) “prohibiting the landing in Canada absolutely of any immigrant or other passenger who is suffering from any loathsome, dangerous or infectious disease ...” This led to medical staff being hired for inspections of immigrants in Canada. 1906 Immigration Act s.26 – feeble-minded, idiots, epileptics, insane (or having had an attack of insanity within five years), deaf and dumb, or dumb, blind or infirm unless belongs to a family offering permanent support or not likely to be a public charge s.27 – afflicted with a loathsome disease or with a disease which is contagious or infectious and which may become dangerous to the public health 17

    18. Prohibited Categories -2 1910 Immigration Act s.3(a) – “Persons mentally defective” idiots, imbeciles, feeble minded, epileptics, insane (or have been insane within five years previous) s.3(b) – “Diseased Persons” afflicted with a loathsome disease or with a disease which is contagious or infectious and which may become dangerous to the public health s.3(c) “Persons physically defective” Dumb, blind, or otherwise physically defective unless family will support or can prove they will not be a public charge s.38(c) Eugenics again! May prohibit “immigrants belonging to any race deemed unsuited to the climate or requirements of Canada...” 18

    19. Prohibited Categories - 3 1919 Amendments to Immigration Act add: Tuberculosis specifically mentioned in diseased persons prohibitions in s. 3(b) 3(k) Persons of a constitutional psychopathic inferiority 3(l) Persons with chronic alcoholism 3(m) Persons not included within any of the foregoing prohibited classes, who upon examination by a medical officer are certified as being mentally or physically defective to such a degree as the affect their ability to earn a living 38(c) amended to include “may prohibit ... any nationality or race ... because such immigrants are deemed undesirable owing to their particular customs, habits, modes of life ... and because of their probable inability to become readily assimilated ...” 19

    20. Prohibited Categories -4 1952 Immigration Act s.5(a) “Mentally defective persons, etc.” (i) idiots, imbeciles or morons (ii) insane or, if immigrants have even been insane (iii) constitutional psychopathic personalities (iv) epileptics, if immigrants s.5(b) “Diseased Persons” Persons afflicted with TB in any form, trachoma or any contagious or infectious disease or with any disease that may become dangerous to the public health s.5(c) “Physically defective persons” Same as 1910 provisions 20

    21. Prohibited Categories -5 1952 Immigration Act – con’t s.5(j) “Drug addicts” Persons addicted to any substance that is a drug within the meaning of the Opium and Narcotic Drug Act s.5(s) “Persons medically certified as impaired” Persons not included in any other prohibited class who are certified by a medical officer as being mentally or physically abnormal to such a degree as to impair seriously their ability to earn a living 1976 Immigration Act s.19(1)(a)(i) - danger to public health or public safety s.19(1)(a)(ii) – excessive demand on health or social services 21

    22. Galacian Immigrants at Grosse Ile 22

    23. Deportees outside Québec Immigration Sheds - 1912 23

    24. “Deformed Idiot to be Deported” Québec City - 1908 24

    25. Laboratory – Immigrant Hospital Québec City - 1911 25

    26. Overseas Medical Examinations Began after First World War Virtually all from European Continent All from UK receiving passage assistance were required to submit a medical certificate Limited to “steerage” (3rd class) passengers until 1928 By 1926 Some 2,000 “roster doctors” in Europe About same time Concerns about quality assurance led to deploying Canadian medical staff abroad, first in London, in 1925, then at other offices Result: medical refusals on landing declined from 742 in 1928 to 196 in 1930 26

    27. Red Cross Workers at Québec Immigration Sheds c. 1920 27

    28. Today’s Immigration Health Program - 1 Legislative Authority: the Immigration and Refugee Protection Act (IRPA) (2002) and Regulations govern the health screening of foreign nationals coming to Canada. One of the objectives of IRPA is to protect the health and safety of Canadians – this objective first appeared in the 1976 Act 28

    29. Today’s Immigration Health Program - 2 IRPA Section 38(1) A foreign national is inadmissible on health grounds if his/her health condition: a) is likely to be a danger to public health b) is likely to be a danger to public safety c) might reasonably be expected to cause excessive demand on health or social services IRPA Section 38(2): exempts some categories of immigrants from the excessive demand assessment: Spouse, conjugal partner or common law partner of a Canadian resident/citizen Dependent child Convention refugee/Refugee Claimant Protected person 29

    30. Today’s Immigration Health Program - 3 Regulation 30(1): the following applicants require immigration medical examinations: all individuals applying for permanent residency temporary residents who are seeking to work in Canada in an occupation in which the protection of public health is essential (e.g. Health care, food services etc.) any applicant who an officer has reasonable grounds to believe is inadmissible under IRPA s.38(1) temporary residents (worker-student-visitor) who will reside in Canada for a period of six consecutive months AND who have resided or sojourned for a period of six consecutive months in a designated country, during the one-year period immediately preceding the date they sought entry or made their application 30

    31. Today’s Immigration Health Program - 4 Designated Countries are not defined in the legislation Based on the public health risk related to Tuberculosis Canada’s Criteria: A country having a three year estimated sputum smear positive pulmonary tuberculosis (TB) rate = 15/100 000 International Tuberculosis Incidence Rates are available at the PHAC website http://www.phac-aspc.gc.ca/tbpc-latb/itir_e.html Data is derived from the World Health Organization's (WHO) most recently available three year estimated sputum smear positive pulmonary tuberculosis (TB) rates Designated Country/Territory List- CIC website http://www.cic.gc.ca/english/information/medical/dcl.asp 31

    32. Today’s Immigration Health Program - 5 Dangers to Public Health: IRPA Regulation 31 - Before concluding whether a foreign national's health condition is likely to be a danger to public health, an officer who is assessing the foreign national's health condition shall consider (a) any report made by a health practitioner or medical laboratory with respect to the foreign national; (b) the communicability of any disease that the foreign national is affected by or carries; and (c) the impact that the disease could have on other persons living in Canada Two conditions are currently considered to be a danger to public health: Active Tuberculosis Untreated Syphilis 32

    33. Today’s Immigration Health Program - 6 Conditions that may be imposed: Regulation 32 is the authority for requiring “medical surveillance” as a condition of entry to Canada” A CIC Officer may impose conditions of entry to certain individuals who enter Canada on a permanent or temporary basis To report at the specified times and places for medical examination, surveillance or treatment; and To provide proof, at the specified times and places, of compliance with the conditions imposed 33

    34. Today’s Immigration Health Program - 7 Dangers to Public Safety: IRPA Regulation 33 - Before concluding whether a foreign national's health condition is likely to be a danger to public safety, an officer who is assessing the foreign national's health condition shall consider (a) any reports made by a health practitioner or medical laboratory with respect to the foreign national; and (b) the risk of a sudden incapacity or of unpredictable or violent behaviour of the foreign national that would create a danger to the health or safety of persons living in Canada Occasionally used for conditions such as: Drug addiction with history of violent behaviour Uncontrolled psychotic conditions with history of violent behaviour 34

    35. Today’s Immigration Health Program - 8 Excessive Demand Authority to determine if an applicant would cause excessive demand is in IRPA Regulation 34: Before concluding whether a foreign national's health condition might reasonably be expected to cause excessive demand, an officer who is assessing the foreign national's health condition shall consider (a) any reports made by a health practitioner or medical laboratory with respect to the foreign national; and (b) any condition identified by the medical examination 35

    36. Today’s Immigration Health Program - 9 Excessive Demand Defined in IRPA Regulation 1 as:  (a) a demand on health services or social services for which the anticipated costs would likely exceed average Canadian per capita health services and social services costs over a period of five consecutive years immediately following the most recent medical examination required by these Regulations, unless there is evidence that significant costs are likely to be incurred beyond that period, in which case the period is no more than 10 consecutive years; or (b) a demand on health services or social services that would add to existing waiting lists and would increase the rate of mortality and morbidity in Canada as a result of an inability to provide timely services to Canadian citizens or permanent residents. 36

    37. Delivering the Immigration Health Program - 1 Approximately 450,000 to 500, 000 Immigration Medical Examinations (IMEs) performed annually by 1,200 Designated Medical Practitioners (DMPs) around the world (Immigration Medical Officers no longer do the exam themselves.) Processed in 10 regional medical offices Ottawa, Port of Spain, Paris, London, Vienna, Nairobi, Delhi, Singapore, Beijing, Manila By Immigration Medical Officers Medical Officers responsible for: Review of the IMEs and recommendations of inadmissibility Quality Assurance visits of DMPs, radiology clinics and laboratories Medical intelligence Note: Information in this section courtesy of CIC Immigration Health Branch 37

    38. Delivering the Immigration Health Program - 2 The IME consists of: Pre-2002 History and complete physical examination for all applicants Urinalysis – those 5 years of age and older Syphilis testing (VDRL) and HIV testing - those 15 years of age and older Chest X-ray – those 11 years of age and older Further tests as required upon review of the initial examination Since January 15, 2002 – All of the above plus: Routine HIV testing all applicants 15 years of age and over or at any age if known risk factor (s) Based on Health Canada’s advice received in 2001 HIV testing is fundamental to Canada’s objective of preventing transmission Not considered a danger to public health Transmission completely preventable Risk determined by individual behaviour Risk can be mitigated by education and counselling May be deemed inadmissible if their health requirements are likely to create excessive demand on health or social services The IME is usually valid for one year 38

    39. Delivering the Immigration Health Program - 3 Outcomes Admissible on health grounds (approximately 97%) Normal or having a health condition considered not significant for the purposes of IRPA Admissible under condition – requiring medical surveillance (approximately 2-3%) Inactive tuberculosis (the vast majority of cases) and syphilis must have been adequately treated Inadmissible on health grounds (approximately 0.3%) Vast majority for excessive demand on health or social services Threshold used for ED assessment: $4,806/year Composite figure developed by adding the average Canadian cost published annually by the Canadian Institute of Health Information (CIHI) to a supplementary amount covering certain social services not included in the CIHI average An applicant is likely to create excessive demand on health or social services if: Requirements’ costs exceed $24,030 over 5 years ($48,060 over 10 years) and/or Requirements add to the waiting list 39

    40. Delivering the Immigration Health Program - 4 Enhanced Health Management for Refugee groups at higher public health risk Based on gathering of health intelligence and collaboration with IOM, UNHCR and other countries working in the areas (USA, Australia, UK). Routine Pre-departure process can be modified when needed to manage the special needs or risks of certain groups. IME validity date Treatment of specific medical conditions Pre-departure fitness to fly examination Post Arrival process all refugees have access to Interim Federal Health (IFH), which pays for all essential care plus some coverage for dental, eye care, drugs and prosthesis 40

    41. Delivering the Immigration Health Program - 5 Interim Federal Health Program Under the IFH Program, the Federal Government pays for health care for certain migrants who are not covered by provincial health plans and are unable to pay for expenses related to urgent and essential services. IFH coverage is provided to: Protected persons in Canada; Refugees selected abroad; Refugee claimants; Applicants in the Pre-Removal Risk assessment (PRRA) process; Canadian Border Service Agency (CBSA) detainees; and Trafficked persons in Canada 41

    42. Delivering the Immigration Health Program - 6 Services covered by IFH Essential health services for the treatment and prevention of serious medical/dental conditions Essential prescription medications Contraception, prenatal and obstetrical care Assistive devices, eyewear, and limited medical transportation and interpretation services. Immigration Medical Examination Data (2007) Number of IFH users: 75,000 Number of medical claims: 523,000 Number of providers nationwide: 18,000 Average number of claims per person: 7 Total IFH expenditures: $50,000,000 Average expenditure per IFH user: $608 Average cost per claim: $87 42

    43. Thank You! 43

    44. Photo Credits Slide - Title Page: Immigrant Hospital Québec City, 1908 – Library and Archives Canada (LAC) a023209 Slide 3: Grosse Ile from the air - LAC - xx014988-v6 Slide 13: Partridge Is Quarantine Station - LAC - a020640 Slide 14: Lawlor Is Quarantine Station – Friends of McNabb Island http://www.mcnabsisland.ca/Gallery/Old_Lawlors_Island/index.htm Slide 15: Grosse Ile 2nd class hotel c1905 - LAC -c079029 Slide 16: Grosse Ile 2nd class hotel 2007 - LAC - c015099 Slide 22: Galacian immigrants at Grosse Isle (undated) - LAC - c005611 Slide 23: Quebec - deportees 1912 - LAC - a020910 Slide 24: Deformed Idiot to be Deported [sic]- 1908 - LAC -a020911 Slide 25: Que Imm Hosp - Lab c1911- LAC - a010283 Slide 27: Red Cross Workers - Quebec City Immigration sheds - LAC - a048700 Slide 43: New Immigrant Hospital Winnipeg c.1900 – LAC – a046607 44

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